The Political Economy of Health Financing Reform: analysis ... · • Contest reform to protect or...

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Health Financing Programme | Dept. Health Systems Governance and Financing

www.who.int/health_financing

The Political Economy of Health Financing Reform: analysis and strategies to support universal health coverage

Susan Sparkes, Jesse Bump, Ece Ozcelik, and Michael Reich WHO Symposium on Health Financing for UHC: managing politics and assessing progress

Liverpool, 9 October 2018

Objectives of the afternoon 1. Discuss how to incorporate political economy

analysis into health financing reform 2. Share experiences in health reform: political

economy factors and strategies to address them 3. Consider future research and policy agenda to

advance health financing reforms in support of UHC objectives

Why are some technically sound health financing policies adopted and implemented and others not?

What political economy factors influence health financing reform adoption and implementation?

How can political economy analysis help develop effective adoption and implementation strategies?

Why focus on political economy analysis?

•Political economy directly affects adoption and implementation processes.

•By better understanding political economy dynamics, policymakers can improve their strategies for adoption and implementation.

Health financing and UHC: guiding principles

1. Move towards predominant reliance on public, compulsory funding for UHC

2. Reduce fragmentation to enhance re-distributional capacity (more prepayment, fewer prepayment schemes) and reduce administrative duplication

3. Move towards strategic purchasing to align funding and incentives with promised services, promote efficiency and accountability, and manage expenditure growth to sustain progress

Why is political economy so important for health financing reform?

1. Redistribution 2. Government intervention and dealing with

ministry of finance 3. Important political issue within countries 4. Reflects core social values

Use of approach

•Analyse political economy factors related to health financing

•Develop strategies to improve development, adoption and implementation of health financing strategies

•Real-time, rapid appraisal to support decision-making

• Intended primarily for reform teams

What’s new about this approach?

•Explicitly recognizes that moving to UHC is a political process.

•Provides practical guidance for national decision makers who seek to adopt and implement health financing reforms that move towards UHC.

So we had this idea…

Now what?

Our vision Revenue Raising Risk Pooling Purchasing Benefit Design

Political Economy Typology? Typical Stakeholders? Policy Cycle Stages?

Institutional Stages? (veto points) Other theory? Political Economy Area 51?

Empirical Experience and literature review

REFORM TEAM

Interest group politics

Bureaucracy politics

Budget politics

Leadership politics

Beneficiary politics

External politics Source: Campos and Reich 2018

REFORM TEAM

Budget politics

Leadership politics

External politics

• Seek to minimize losses, maximize gains from reform

• Common stakeholders: • Providers and their unions • Industry groups • Insurers and employers’

groups • Specific consumer groups

• Ministries and other governmental units

• Contest reform to protect or expand authority, interests, budget, personnel, or influence.

• In federal and decentralized settings, complex central-subnational power dynamics are complex and may be influenced by party politics

REFORM TEAM

Budget politics

Leadership politics

Beneficiary politics External politics

Budget politics

• Overall tax administration and collection, revenue allocation typically lie with finance authorities

• Budget allocation and expenditure mechanisms can deeply influence reform

REFORM TEAM

Interest group

politics

Budget politics

Leadership politics

External politics

Leadership politics

• Political leaders: executive and legislative

• Priority of reform relative to other national-level issues

• Influences perceptions of the benefits and costs of reform, thereby changing feasibility

• Electoral cycles, party politics, and context shape opportunities for reform

REFORM TEAM

Interest group

politics

Budget politics

Leadership politics

External politics

Beneficiary politics • Citizens • Behaviors, preferences, and political

activities of end users • Considers ideas and ideologies

• Alignment of reform with national values, identities, worldviews

• Public opinion

• Reform success may require changing the behavior of end users

• Social mobilization, democratic participation of existing or potential beneficiaries

REFORM TEAM

Interest group

politics

Budget politics

Leadership politics

External politics

• External actors can be very influential:

• Bi- and multi-lateral agencies • International financial

institutions • NGOs, private companies,

foundations • Managing, coordinating

donors is complex • External donors can distort

priorities, undermine country ownership

REFORM TEAM

Bureaucracy politics Budget politics

Leadership politics

Beneficiary politics External politics

Methods Conclusions

• Moving from a cloud to clarity • Intended to identify common challenges and

solutions—not as a theory of everything • Focused on political strategies for reform teams

• Other users would have other options • Developed with retrospective evidence, but intended

for prospective use • Integral to policy development; not intended as a

separate stage

•The approach takes the perspective of those working to develop and implement health financing reform: oReform teams oMinistry of health officials oPractitioners, development partners and

researchers supporting government officials

User perspective

DETERMINE POLICY

OBJECTIVE

DEVELOP POLICY OPTIONS

ANALYSE POLITICAL ECONOMY FACTORS

DEVELOP AND SEQUENCE STRATEGIES

Practical application of the framework

• We tested the approach by

conducting a retrospective analysis of international experiences in reducing fragmentation in pooling

Bureaucratic politics related to reducing fragmentation in pooling

Existing social security institutions or bureaucratic agencies may express concerns over policies to consolidate pools

Perceived threat that the consolidation plans could reduce benefits to their own beneficiaries

Influx of new beneficiaries into existing pools could overwhelm the capacity to deliver services

Turkey

Mexico

Examples

Navigating bureaucratic politics Use favourable personal relationships with top political leaders to strengthen support and reduce opposition to the proposed consolidation

Form an intergovernmental task force before the pooling reforms are discussed in the Legislature to coordinate plans across bureaucratic agencies

Support the policy development process by drawing on the knowledge of domestic and international technical experts

Concluding remarks

• We applied the approach in a retrospective analysis of international experiences in reducing fragmentation in pooling

• Intended use: reform teams can use this approach to improve the political feasibility of a desired health financing reform

Thank you

• We gratefully acknowledge: • All participants of the 2-3 July 2018 expert consultation on The Political

Economy of Health Financing Reform: Analysis and Strategy to Support Universal Health Coverage

• Harvard T.H. Chan School of Public Health, in addition to the authors, research assistance from Claire Chaumont and administrative support from Emily Cole

• Financial support from the United Kingdom’s Department for International Development (Making Country Health Systems Stronger programme)

Acknowledgments

References

• Campos PA, Reich MR. Political Analysis for Health Policy Implementation (DRAFT). Rockville, Maryland: Health Finance and Governance Project, Abt Associates; 2018.

• Frenk J. The global health system: strengthening national health systems as the next step for global progress. PLoS Med 7 2010; 1: e1000089.

• Berlan D, Buse K, Shiffman J, Tanaka S. The bit in the middle: a synthesis of global health literature on policy formulation and adoption. Health Policy Plan 2014; 29(Suppl 3): iii23-iii34.

• Brinkerhoff DW, Crosby B. Managing policy reform: concepts and tools for decision-makers in developing and transitioning countries. Bloomfield, CT: Kumarian Press; 2002

• Gilson L. Everyday Politics and the Leadership of Health Policy Implementation. Health Systems & Reform 2016; 2(3): 187-93.

Thailand Universal Coverage Scheme: Political Economy Factors

Walaiporn Patcharanarumol, PhD. International Health Policy Program (IHPP),

Ministry of Public Health, Thailand 9 October 2018 Liverpool, UK

Thai Universal Health Coverage, since 2002

Act 2002 Royal Decree 1980 Act 1990

Comptroller General Dept, MOF

Social Security Office, MOL National Health Security Office

Public (75%) & private (25%) health facilities

48 mln pop (reside in rural areas; Q1-2; children, elderly,

informal wk)

9 mln pop (urban; Q4-5; children,

elderly, public sector wk)

11 mln pop (city; Q4-5; only adult

workers in private sector)

Tax funded Tax funded Tripartite cont

UC Scheme Civil Servant Scheme Social Health Insurance

68 million Thai populations

Functions of UC Scheme’s manager

UHC in real actions: (a) ensure access & (b) financial risk protection

2. Budgeting 3. Designing payment methods

4. Fund management 5. M&E, consumer protection

• Beneficiary registration (CRVS)

• Benefit package • Cost of service

Adequate funding

• Provider registration & beneficiaries’ allocation

• New idea for improvement

Efficiency, equity and quality

• 70% of UCS budget by capitation & DRG

• 30% by reimbursement (claim – high cost, special payment)

• Audit • Payment

Accountability & transparency

• Call Center • Public hearing • Satisfaction survey • Report to the Board,

Cabinet & public

Right protection

6. Fundamental issues: law, administration, IT, HR

1. Managing the Boards / committees – Good Governance

Networking

Ministries e.g. MOPH, MOF, MOI, NSO

Private providers

Research agencies: IHPP, HITAP, HSRI

Implementing UC Scheme

NHSO Internal resources

Budgeting

Boards & sub-committees

Fund management

Designing payment methods

Law, adm, IT, HR

M&E, consumer protection

Outsourcing

SCB bank

Patient groups

Continued political commitment to UC scheme, despite 8 rival governments, 13 health ministers and 11 permanent secretaries

1,6591,899

2,1002,202

2,4012,546

3,028 3,109

1,3961,3081,202 1,202

2,7552,895

2001 2002 2003 2004 2005 2006 2007 2008 2009 2010 2011 2012 2013 2014 2015 2016 2017

M 13M 13M 12M 12M 11M 10M 9M 9M 8M 5-7M 4M 3M 2M 1

G 8G 7, 8G 7G 6, 7G 6G 4, 5G 3G 2G 1

20172016201520142013201220112010200920082007200620052004200320022001

M 13M 13M 12M 12M 11M 10M 9M 9M 8M 5-7M 4M 3M 2M 1

G 8G 7, 8G 7G 6, 7G 6G 4, 5G 3G 2G 1

20172016201520142013201220112010200920082007200620052004200320022001

Baht / person / year

UC Scheme budget (million Thai Baht)

35 Source: data from National Health Security Office

Political economy factors • Triangles that Move the Mountain: political-social-intellectual powers

– Different actors in moving towards UHC: government, MOPH, providers, CSO, academia, public media etc

– Home grown capacities to generate evidence and meet emerging challenges

• Peace and economic growth allowed larger fiscal spaces for social protection – Health budget gradually moved up to around 16% of government budget

• Health system strengthening: PHC based equitable Health Systems since 1978 vs tertiary care hospitals

Remaining challenge • Fragmentation of three schemes

Consejo Nacional de Salud WHO symposium on health financing

for UHC

Political Economy Outline of Peru´s Health Reform

Midori de Habich Liverpool, October 2018

Can we learn from the past trajectory to jump start the next phase of the health reform?

Purpose

Overview of Peru´s Health Reform

(*) 24 Legislative Decrees

Period 2004-2005 2006-2007 2009 2009-2010 2013-2016

Policy cycle Agenda setting Policy design Approval Implementation I Implementation II

Scaling -up (*)

Creation of SUSALUD(National Health Superintendency)

Implementation of UHI pilots

Key milestones

ial el

Approval of the Universal Health

Insurance Law (UHI)

Approval of the Benefit Package -

Strengthening of SIS (Public Health

Insurer)

Expansion of population coverage

ial el

Approval of the UHI by-law

Multiple legislative proposals from diverse political

parties

Extension of PEAS nationwide

Approval of the Political Parties´

Agreement on Health

Period

Policy cycle

Milestone

Opportunity

Key dimensions: Political economy factors Strategies

Interes groupsLeadershipPolitics

Potential advocates and political leaders not well informed and not organized

Bureaucratic Little awareness or involvement. No strategies for engagement.BeneficiaryPolitics

Post-Fujimori democratic transition. Revival of political parties and movements.

Facilitation of a consensus building process with wide participation of 16 political parties, ahead of the election period ("veil of ignorance" ).

Health and health reform not a political priority.

Knowledge sharing on health sector indicators, particularly health financing

Support discussion by drawing on international techno-politicians /high level practitioners

2004-2005

Agenda setting

Approval of the Political Parties´ Agreement on Health (PPAH)

Period

Policy cycle

Milestones

Opportunity

Movilization of the members of the PPAH to achieve support in Congress to pass the UHI Law.

Bureaucratic

Politics

Beneficiary Little involvement. No strategies for engagement.Politics

Approval of the Universal Health Insurance Law (UHI)

Resistence of MOF to UHI reform due to fiscal constraints. Facilitation of a convergence process of most

of the multiple proposals.

Resistence of MOF to UHI reform due to fiscal constraints.

Support from the President and empowerment of the Minister of Health.

Political parties incorporated (some notion) of health reform as a priority.

Need for differentiation (after the broad consensus) of political actors.

Technical support to the President of Congressional Health Committee (of the governing party and member of the PPAH).

2007-2009

Policy design and Appoval

Multiple legislative proposals from diverse political parties

Period

Policy cycle

Milestones

Opportunity

Interes groupsLeadership

Politics

BureaucraticPolitics

Beneficiary Little awareness or involvement. No national strategies for engagement.Politics

Resistance (pasive) from sub sectors (Social Security, private sector, etc. ) to accept MOH stewarship role

Creation of the National Committee for the implementation of UHI, lead by the Minister of Health

Emphasis on pro-poor orientation of the reform

Economic growth, Presidential support.

Implementation of pilot experiences in 3 poor regions. ("What doesn´t happen in Lima, doesn't happen")

Resistence from left wing parties and related civil society organizations.

2009-2010

Implementation: initial phase

Approval of the UHI by-law, Benefit Package (PEAS) and pilots

Period

Policy cycle

Milestones

Opportunity

BureaucraticPolitics

Beneficiary Little awareness or involvement.Politics

Support from the President and empowerment of the Minister of Health.

Short-route: Creation of Citizens Juries (Juntas de Usuarios)

Agreement of health policy framework MOH-Regional Governments

Coordination of policy implementation MOH-Regional Health Directorates.

Extension of population coverage, extension of PEAS nationwide, Strengthening of SIS (Public Health Insurer), Creation of SUSALUD (National Health Superintendency), wage reform, investment reform.

Delegation of Legislative Faculty to the MOH for the approval of the health reform package (24 Legislative Decrees)

Economic growth, Presidential support.

Resistence from providers (public hospitals) and unions.

The President's request to the National Health Council for a health reform package

Resistence from left wing parties and related civil society organizations.

2013-2016

Implementation: scaling up

Design of pathway

Policy design

Agenda Setting

Approval Implementation

Adapted from Facilitative Leadership.

Going forward

Thanks mdehabich@iages.com.pe

The Political Economy of Health Financing Reform: analysis ... · • Contest reform to protect or...

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